Transitional urban housing reform in China-the Chongqing case

中國自第十一屆三中全會朝改革開放發展，住房制度改革前以前蘇聯為目標，透過工作單位制實施福利分房制度，然而實物配給制發展產生諸多問題，如：收租失衡、分配不公、住房存量不足等制度運作結果，因此隨著經濟改革的同時，住房制度也朝向透過商品化與市場化解決住房問題。中國於1998年正式停止福利分房制度，朝市場化轉型過程中，亦同步發展住房保障制度，包括：建設廉租房及經濟適用房等保障性住房、建立多層次保障性住房體系、推廣公積金制度等措施，試圖在市場運作之外保障人民安居權利。在中國住房制度轉型過程中，重慶於2010年以公共租賃住房為核心，建立一套保障性住房體系，整合既有的商品房市場，試圖保障性住房與商品房市場雙軌並行的體制，並在制度運作上以國有資產投入建設、由土地儲備中心提撥建設用地，透過諸多政策手段快速發展住房雙軌制，重慶的住房制度設計亦被稱為住房的「重慶模式」，在政策設計上體現「具有中國特色的社會主義市場經濟」的目標。 重慶的住房模式在短短幾年間引起學界關注，主因在於近年中國城市面臨高房價的困難，雖自1998年即開始推動各種保障性住房，但在各城市的運作中面臨許多困難，對社會弱勢保障效果有限。重慶近年在住房制度設計上形成住房保障與商品住房雙重運作體系，透過各種推動公共租賃住房及其他保障性住房，為中國各城市乃至世界各國面臨居住問題者所關注。有鑑於目前尚未有完整探討重慶住房制度改革的文獻，對住房的重慶模式也未有完整的討論，因此本文以中國住房制度改革做為背景脈絡，探討重慶住房改革歷程，分析重慶保障性住房政策與商品房市場的政策設計，進一步聚焦住房的「重慶模式」運作內容，整理分析重慶住房制度超越其他城市建立雙軌制的因素，並探討重慶住房保障體系能在幾年內快速建設的關鍵，為後續研究中國住房改革及重慶住房雙軌制者提供研究發現。As China went through the progress of economic reform during late 1980’s, the housing policy also started to change. It was used to be welfare housing distribution system in the past years, however, many problems raised in practice, such as insufficient charge in rent, unfair distributions, or insufficient housing units. Therefore, the housing policy started to practice commercialization and marketization, in order to resolve the old problems. Chinese government officially stopped the welfare housing policy in 1998. During the transformation to commercialized housing market, the Chinese government also developed indemnificatory apartments with multilayer protections, including the construction of low-rent housing, affordable housing and public housing accumulation fund. The government attempted to provide dual housing system by investing constructions, providing land for housing and other policies. The most well known case is the “Chongqing model” The goal of their policy is to realize “the socialism market economy with Chinese characteristics”. The “Chongqing model” drew a lot of attention in academia in very few years. The main reason is the rising housing price in the cities in China. Although indemnificatory apartments project formed since 1998, the practical operation is problematic with limited protection for people with lower social status. By having public rental housing and other secured housing, the city government of Chongqing has developed a dual system with both secured housing and commercialized housing. Their achievement is known by other Chinese cities and the rest of the world. This thesis will address the background of the reform of Chinese housing policy, the progress of the reform of the housing policy in Chongqing , the analysis of the policy design and the operation of their policy. The reason why the “Chongqing model” is better than other cities in China will be discussed as well. We hope that we will provide the key of the fast and growing development of the Chongqing’s housing system, to people who are interested in reform of Chinese housing policy and the dual housing system in Chongqing